UMATILLA ARMY DEPOT REUSE AUTHORITY REDEVELOPMENT … · Due to the nature of the process, size of...

DRAFT SUBMITTAL PART I

UMATILLA ARMY DEPOT REUSE AUTHORITY

May 28, 2010

Prepared for UMADRA by the Dana Mission Support Team “Solutions Planning for the Changing Environment of the Umatilla Chemical Depot”

REDEVELOPMENT PLAN AND IMPLEMENTATION STRATEGY

“This study was prepared under contract with the Confederated Tribes of the Umatilla Indian Reservation, Oregon, on behalf of the Umatilla Army Depot Reuse Authority with financial support from the Office of Economic Adjustment, Department of Defense. The content reflects the views of the UMADRA and does not necessarily reflect the views of the Office of Economic Adjustment.”

UMADRA Redevelopment Plan and Implementation Strategy

Submittal Part I: Draft_00

DMST_RPIS_D00_052810

Editor’s Note:

Due to the nature of the process, size of documents, and general maintenance of the

information included in the UMCD Base Reuse Plan, culmination of documents will occur

after the Public Comment period and UMADRA review is complete. The Submittal Package is

composed of many parts and parcels, all of which can be found at our website under the

Documents tab, DMST Reports (www.missionumatilla.com). We have attempted to maintain

the reports in a fashion that although currently separate, will make sense once the submittal

document is completed. As Submittal Part I, this document contains the master acronym

listing for the full submittal and other submittal requirements in the front pages (not

numbered).

The remainder of the document is relevant to this specific document. (pages i – 34)

The UMADRA will have a review of the “complete” package in July of this year and the

“complete” package will be posted for public viewing. A full technical edit will be completed

prior to delivery of the Submittal and will be posted on the website at that time.

Thank you.




Approved by the Umatilla Army Depot Reuse Authority on July _____, 2010

UMADRA - LOCAL REDEVELOPMENT AUTHORITY MEMBERS

William (Bill) Hansell, Chairman/Commissioner

George Anderson, Attorney

Terry Tallman, Vice-Chair/ County Judge

Carla McLane, County Planner

Kim Puzey, Port Director

John Turner, Port Commissioner/President BMCC

Gary Neal, General Manager

Lisa Mittelsdorf (alt), Director of Economic Development

Joe Taylor, Port Commissioner/Agriculture

Dr. Rodney Skeen, Contract Manager/PhD, PE Env.

Carl Scheeler, Wildlife Program Manager

Rosenda Shippentower, Tribal Board of Trustees Treasurer

William Quaempts, Tribal Board of Trustees, Member at Large

EX-OFFICIO LRA BOARD MEMBERS

Scott Fairley, Governor’s Office

LTC. Christian Rees, Oregon National Guard

REPRESENTATION




DANA MISSION SUPPORT TEAM – LRA SUPPORT STAFF

William Dana, ME/PE Program Mngr/President

Donald Chance, PhD Executive Director

Kimberley Swentik Executive Admin./MSE PM

Brian Cole Planning Specialist

Dennis Walters Facilitator/Vice President

Nancy Ness Homeless Assessment/Admin

Barry C.K. Moravek Communications Specialist/VP Western Operations

Richard (Dick) Stone Communications Subject Matter Expert

Jay Cornish Chief Environmental Scientist/Biologist

Bernard Fineberg, EE/PE Electrical Engineer, PE

Ross Dunfee, CE/PE Civil Engineer, PE

Richard (Dick) Walker, EE/PE Electrical Engineer, PE

Tom Burkhart, ME/PE Mechanical Engineer – Systems, PE

Ruthmeri Gleason Webmaster/Technical Editor

Kathy Murray, CPPA Certified Personal Property Administrator

Steve Antonioli Economic Analyst

Kevin Bradford Graphics/Technical Expert

John Hanson Assessor/Chemical Engineer

Timothy McAnarney BRAC Technical Specialist

Mario Fiori, PhD BRAC Senior Advisor

Stephen Heck Air Quality, EPA Superfund Subject Matter Expert

Steve Mallory, AIA, CSI Principal Architect

LRA SUPPORT STAFF




MASTER ACRONYM KEY Acronym Definition Document A Agriculture Redevelopment/Implementation Strategy

Infrastructure AC asbestos cement (pipe)

Ecosystem

ACM asbestos containing material (>1% by weight asbestiform minerals)

Environmental Assessment

Facilities Assessment


ADA ammunition disposal area

Redevelopment/Implementation Strategy

ADSL Asymmetric Digital Subscriber Line Infrastructure

AOC area of concern Environmental Assessment

AQI air quality index Ecosystem

ATSDR Agency for Toxic Substances and Disease Registry Ecosystem

B.P. before present Ecosystem

BCP Base Cleanup Plan (U.S. Army, 1995) Environmental Assessment

BEA Bureau of Economic Assessment Market Assessment

bgs below ground surface Environmental Assessment

Economic Assessment

Land Use

BLM Bureau of Land Management


BLS US Bureau of Labor Statistics Market Assessment

BMCC Blue Mountain Community College Economic Assessment

BR&E Business Retension & Expansion Economic Assessment

Economic Assessment

Land Use

Market Assessment

Redevelopment Alternatives


Homeless


BRAC Base Realignment and Closure

Public Outreach Summary

BTEX benzene, toluene, ethylbenzene, and xylene Environmental Assessment

Facilities Assessment BTU

British thermal unit Infrastructure

CAB Cement Asbestos Board Facilities Assessment

Homeless CAPECO Community Action Program East Central Oregon


CAT Category Infrastructure

Environmental Assessment CERCLA Comprehensive Environmental Response, Compensation, and Liability Act Redevelopment/Implementation Strategy

Environmental Assessment CERFA Community Environmental Response Facilitation Act

Ecosystem




Acronym Definition Document Environmental Assessment

Ecosystem

CFR Code of Federal Regulations

Homeless

cfs Cubic feet per second Land Use

CL confidence limit(s) Environmental Assessment

CMU Concrete Masonry Unit Facilities Assessment

COE Corp of Engineers Land Use

CSEPP Chemical Stockpile Emergency Preparedness Program Economic Assessment

Economic Assessment

Land Use


Ecosystem

Homeless

CTUIR Confederated Tribes of the Umatilla Indian Reservation


D&D Decontamination and Decommissioning Redevelopment/Implementation Strategy

DBP disinfection by‐products Ecosystem

DEQ Oregon Department of Environmental Quality Infrastructure

Economic Assessment


Market Assessment


DMST Dana Mission Support Team


Redevelopment Alternatives DoD Department of Defense

Homeless

DPI Disposable Personal Income Market Assessment

DRMO Facilities Assessment

ECF Entry Control Facility Infrastructure

ECP Environmental Condition of Property (report) Environmental Assessment

EFU exclusive farm use Land Use

ESD explanation of significant differences Environmental Assessment

FAA Federal Aviation Administration Economic Assessment

FEMA Federal Emergency Management Agency Redevelopment/Implementation Strategy

FICWD Federal Interagency Committee for Wetlands Delineation

Ecosystem

FOSET finding of suitability to early transfer Environmental Assessment

FOSL finding of suitability to lease Environmental Assessment

FOST finding of suitability to transfer Environmental Assessment

FR2 Farm Residential Land Use

Environmental Assessment ft feet

Ecosystem

GAC granular activated carbon Environmental Assessment

GDP Gross Domestic Product Market Assessment




Acronym Definition Document Environmental Assessment gpm gallons per minute

Ecosystem

GIS Geographic Information System Redevelopment/Implementation Strategy

Environmental Assessment GWMA Groundwater Management Area

Ecosystem

HC/I Highway Commercial/Industrial Redevelopment/Implementation Strategy

HQ/HI hazard quotient/hazard index Environmental Assessment

hr hour Ecosystem

HSP Homeless Service Provider Homeless

Homeless HUD U.S. Department Of Housing And Urban Development


HVAC Heating, ventilating, and air conditioning Facilities Assessment

I Industrial Redevelopment/Implementation Strategy

ILRA Implementation Local Reuse Authority Redevelopment/Implementation Strategy

IMPLAN IMpact Analysis for PLANning Economic Assessment

INRMP Integrated Natural Resources Management Plan Ecosystem

IWW Institute for Water and Watersheds (at Oregon State University)

Ecosystem

K Thousand Infrastructure

KSF Key Success Factor Economic Assessment

KVA Kilovolt‐Ampere Infrastructure

LAN Local Area Network Infrastructure

LBA Legally Binding Agreement Homeless

LCDC Land Conservation and Development Commission Land Use

LEIC lifetime excess incidence of cancer Environmental Assessment

Market Assessment



Economic Assessment

Land Use

Homeless


LRA Local Redevelopment Authority


LTC Lieutenant Colonel Public Outreach Summary

LTM long‐term monitoring Environmental Assessment

LUB Lower Umatilla Basin Ecosystem

M‐COFT Mobile Conduct of Fire Trainer Pad Redevelopment/Implementation Strategy

Environmental Assessment MCL maximum contaminant level (in drinking water)

Ecosystem

MEC munitions and explosives of concern Environmental Assessment

Environmental Assessment mg/L milligrams per liter (= parts per million)

Ecosystem




Acronym Definition Document mph miles per hour Ecosystem

MPN most probable number (of microbes) Ecosystem

MT Military Training Redevelopment/Implementation Strategy

MVA Million Volt‐Amperes Infrastructure

NAAQS National Ambient Air Quality Standard Ecosystem

NEC National Electrical Code Facilities Assessment

NEPA National Environmental Policy Act Environmental Assessment

NFPA 70 National Fire Protection Association Facilities Assessment

Market Assessment


Homeless

NOI Notice of Interest


NPL National Priorities List (under CERCLA) Environmental Assessment

OAR Oregon Administrative Rules Environmental Assessment

OB/OD open burning/open detonation Environmental Assessment

Environmental Assessment ODEQ Oregon Department of Environmental Quality

Ecosystem

ODGAMI Oregon Department of Geology and Mineral Industries Economic Assessment

ODHS/DWP Oregon Department of Human Services/Drinking Water Program

Ecosystem

ODOT Oregon Department of Transportation Redevelopment Alternatives

Economic Assessment OEA Office of Economic Adjustment

Homeless

OEA Office of Economic Adjustment Redevelopment/Implementation Strategy

Economic Assessment OEDA Oregon Economic Development Association

Market Assessment

OHTAC Oregon Historic Trails Advisory Council Ecosystem

OMD Oregon Military Department Redevelopment Alternatives

Land Use



ORNG Oregon National Guard


ONHIC Oregon Natural Heritage Information Center Ecosystem

OSHA Occupational Safety and Health Administration Facilities Assessment

OSHA Occupational Safety and Health Act Redevelopment/Implementation Strategy

Environmental Assessment OU operable unit

Ecosystem

P.L. public law Environmental Assessment

PAH polyaromatic hydrocarbon Environmental Assessment

PBC Public Benefit Conveyance Homeless

PBC Public Benefit Conveyance Redevelopment/Implementation Strategy

pCi/l pico‐Curie/liter Environmental Assessment




Acronym Definition Document pCi/l pico‐Curie/liter Ecosystem

PILT Payment in Lieu of Taxes Redevelopment/Implementation Strategy

Plan Redevelopment Plan and Implementation Strategy Redevelopment/Implementation Strategy

PM10 particulate matter 10 – microns (or less) in diameter Ecosystem

PM2.5 particulate matter 2.5 – microns (or less) in diameter Ecosystem

PMB Personnel and Maintenance Building Infrastructure

PNNL Pacific National Laboratory Redevelopment Alternatives

Environmental Assessment ppb(m) parts per billion (million)

Ecosystem

PRG preliminary remediation goals Environmental Assessment

PSB Personal Support Building Infrastructure

Infrastructure PVC polyvinyl chloride (pipe)

Ecosystem

RA risk assessment (human health or ecological) Environmental Assessment

RAC remedial action complete Environmental Assessment

RCRA Resource Conservation and Recovery Act (as amended) Environmental Assessment

RCRA Resource Conservation and Recovery Act Redevelopment/Implementation Strategy

Environmental Assessment RDX Royal Demolition Explosive (hexahydro–1,3,5–trinitro–1,3,5–triazine) Ecosystem

RI/FS remedial investigation/feasibility study Environmental Assessment

ROD record of decision Environmental Assessment

ROD Record of Decision Redevelopment/Implementation Strategy

RPIS Redevelopment Plan and Implementation Strategy Redevelopment/Implementation Strategy

RR1 Rural Residential Land Use

Ecosystem RTE rare, threatened, endangered (plant‐animal species)

Ecosystem

RV Recreational Vehicle Facilities Assessment

S/S solidification/stabilization Environmental Assessment

SAIC Science Applications International Corporation Ecosystem

SETH Facilities Assessment

Sq ft Square feet Facilities Assessment

ssp. subspecies (of a particular species) Ecosystem

SWRI Southwest Research Institute Facilities Assessment

TCLP toxicity characteristic leach procedure Environmental Assessment

TCP Traditional Cultural Properties Land Use

TCPC Tank Crew Proficiency Course Redevelopment/Implementation Strategy

TNT 2,4,6 – trinitrotoluene Environmental Assessment

TNT 2,4,6 – trinitrotoluene Ecosystem

TSCA Toxic Substances Control Act Environmental Assessment

TCSA Toxic Substances Control Act Redevelopment/Implementation Strategy

TSDF treatment, storage, or disposal facility Environmental Assessment

U.S.C. United States Code Environmental Assessment




Acronym Definition Document Ecosystem

UADTZ Umatilla Army Depot Transition Zone Land Use

Economic Assessment UEC Umatilla Electrical Cooperative

Infrastructure

UFSG Unhealthy for Sensitive Groups Ecosystem

UGB Urban Growth Boundary Land Use

Market Assessment


Homeless


UMADRA Umatilla Army Depot Reuse Authority



Infrastructure

Market Assessment



Economic Assessment

Land Use

Ecosystem

Homeless

UMCD Umatilla Chemical Depot



Infrastructure



Economic Assessment

Ecosystem

UMCDF Umatilla Chemical Disposal Facility or Umatilla Chemical Agent Disposal Facility


UPRR Union Pacific Railroad Infrastructure

Land Use


USACE United States Army Corp of Engineers

Ecosystem

USDoD United States Department of Defense Environmental Assessment

Land Use


USEPA United States Environmental Protection Agency

Ecosystem

Land Use USFS United States Forest Service

Ecosystem


Ecosystem

USFWS United States Fish and Wildlife Service


UXO unexploded ordnance Environmental Assessment




Acronym Definition Document Redevelopment/Implementation Strategy

V Volt Infrastructure

VA Volt‐Ampere Infrastructure

VAT Vinyl asbestos tile Facilities Assessment

WDC‐URS Washington Demilitarization Company‐URS Corp Facilities Assessment

WGI Washington Group International Facilities Assessment

WR Wildlife Refuge Redevelopment/Implementation Strategy

Environmental Assessment μg/L micrograms per liter (= parts per billion)

Ecosystem

Environmental Assessment μg/m3 micrograms per dry standard cubic meter

Ecosystem



DMST_RPIS_D00_052810 i

TABLE OF CONTENTS TABLE OF CONTENTS........................................................................................................................................... i

LISTING OF FIGURES........................................................................................................................................... ii

ACRONYM KEY ................................................................................................................................................ iii

EXECUTIVE SUMMARY .................................................................................................................................. 1

SECTION ONE: PLANNING PROCESS.............................................................................................................. 2

Redevelopment Plan—Overview ............................................................................................................. 3

Summary of Plan Components................................................................................................................. 4

SECTION TWO: REDEVELOPMENT PLAN.....................................................................................................14

REDEVELOPMENT ZONES .......................................................................................................................16

Military Training Zone.........................................................................................................................17

Wildlife Refuge Zone...........................................................................................................................20

Industrial Zone ....................................................................................................................................22

Restricted Industrial............................................................................................................................23

Highway Commercial and Industrial Zone .........................................................................................24

Agriculture...........................................................................................................................................25

SPECIAL CONSIDERATIONS .....................................................................................................................26

Shrub‐Step Policy ................................................................................................................................26

Environmental Clean‐Up.....................................................................................................................27

Water and Sewer Infrastructure.........................................................................................................28

Rail Salvage..........................................................................................................................................28

Road Policy ..........................................................................................................................................29

Law Enforcement Policy......................................................................................................................29

Security ................................................................................................................................................29

Fire Protection Policy ..........................................................................................................................29

INTEGRATION WITH COUNTY ZONING CODES ......................................................................................30

SECTION THREE: IMPLEMENTATION STRATEGY .........................................................................................31

Case for a No‐Cost Economic Development Conveyance .....................................................................32

Recommending an Implementing LRA...................................................................................................33



DMST_RPIS_D00_052810 ii

LISTING OF TABLES

Table 1: The Planning Process....................................................................................................................... 2

Table 2: Prioritized Key Strategies ................................................................................................................ 5

Table 3: At‐a‐glance Alternatives................................................................................................................12

Table 4: Redevelopment Zone Acreage ......................................................................................................16

Table 5: Description of Zones .....................................................................................................................16

Table 6: ORNG Staffing, Facilities, & Land Requirements...........................................................................18

Table 7: Migratory Bird Species ..................................................................................................................21

LISTING OF FIGURES Figure 1: UMCD Redevelopment Plan ........................................................................................................14

Figure 2: UMCD Proposed Land Reuse .......................................................................................................15

Figure 3: Military Training Zone..................................................................................................................17

Figure 4: Wildlife Refuge Zone....................................................................................................................20

Figure 5: Industrial Zone .............................................................................................................................22

Figure 6: Restricted Industrial Zone............................................................................................................23

Figure 7: Highway Commercial/Industrial Zone .........................................................................................24

Figure 8: Implementation Strategy .............................................................................................................31



DMST_RPIS_D00_052810 iii

ACRONYM KEY ACRONYM DEFINITION A Agriculture

ADA Ammunition Disposal Area

BLM Bureau of Land Management

BRAC Base Realignment and Closure

CAPECO Community Action Program of East Central Oregon

CERCLA Comprehensive Environmental Response, Compensation, and Liability Act

CTUIR Confederated Tribes of the Umatilla Indian Reservation

D&D Decontamination and Decommissioning

DMST Dana Mission Support Team

FEMA Federal Emergency Management Agency

GIS Geographic Information System

HC/I Highway Commercial/Industrial

HUD US Department of Housing and Urban Development

I Industrial

ILRA Implementation Local Reuse Authority

LRA Local Redevelopment Authority

M‐COFT Mobile Conduct of Fire Trainer Pad

MT Military Training

NOI Notices of Interest

OEA Office of Economic Adjustment

ONG Oregon National Guard

OSHA Occupational Safety and Health Act

PBC Public Benefit Conveyance

PILT Payment in Lieu of Taxes

Plan Redevelopment Plan and Implementation Strategy

RCRA Resource Conservation and Recovery Act

ROD Record of Decision

RPIS Redevelopment Plan and Implementation Strategy

TCPC Tank Crew Proficiency Course

TCSA Toxic Substances Control Act

UMADRA Umatilla Army Depot Reuse Authority

UMDCF Umatilla Chemical Demilitarization Facility

USFWS US Fish and Wildlife Service

UXO Unexploded Ordinance

WR Wildlife Refuge



DMST_RPIS_D00_052810 iv

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DMST_RPIS_D00_052810 1

EXECUTIVE SUMMARY The Umatilla Army Depot Reuse Authority (LRA) has developed this Redevelopment Plan and Implementation Strategy (RPIS or Redevelopment Plan or Plan) for the Umatilla Chemical Depot (UMCD). The Depot, which is approximately 17,000 acres in size exclusive of restrictive easements, is located in Northern Morrow and Umatilla counties in northeastern Oregon. Originally listed in the 1988 Base Realignment and Closure (BRAC) process, the Department of Defense ultimately recommended closure of UMCD during the 2005 BRAC round of announcements. The chemical demilitarization operation at UMCD is anticipated to culminate in 2012 (or later). The LRA was established in order to address the economic impacts associated with the closure of UMCD, and to facilitate environmental goals as well as reuse opportunities by the Oregon National Guard. Leaders of the region as well as representatives supporting the State of Oregon’s interests have served on the LRA for over two decades. This Redevelopment Plan and Homeless Assistance submission to HUD and the Military Department is in conformance with Public Law 101-510, Section 2905(b)(7)(K)(iii)—“the Secretary of Defense shall dispose of buildings and property under clause (i) in accordance with the Record of Decision or other decision document prepared by the Secretary in accordance with the National Environmental Policy Act of 1969 (42 U.S.C. 4321 et seq.). In preparing the Record of Decision or other decision document, the Secretary shall give substantial deference to the Redevelopment Plan. This Redevelopment Plan is important because the Military Department will use it to conduct the property disposal environmental analysis required by NEPA. The Military Department treats the Plan as a part of the proposed federal action for the installation. The Plan also serves as the basis for consideration of land transfers and the establishment of Economic Development Conveyances. This RPIS is divided into three overarching sections: Section One: Planning Process. The LRA utilized an extensive planning process as governed by the Department of Defense Office of Economic Adjustment (OEA). The process employed a series of methods to collect information about the status and condition of UMCD as well as the thoughts and desires of the general public about reuse options. A total of ten tasks were completed by the LRA contractor, the Dana Mission Support Team (DMST), between the period of July 2009 and June 2010. Section Two: Redevelopment Plan. The Redevelopment Plan recommends specific redevelopment land use zones to accommodate the three overarching goals of economic development, environmental preservation, and military reuse. Section Three: Implementation Strategy. The Implementation Strategy makes specific recommendations regarding conveyance mechanisms for the land, a follow-on analysis specific to infrastructure recommendations, a ten-year business plan, and the establishment of an Implementing LRA to manage the economic development conveyances being recommended.

A Plan for the Future This Redevelopment Plan and

Implementation Strategy makes a series of recommendations to the US

Department of the Army for the reuse of the Umatilla Chemical Depot in order to create jobs, preserve the environment, and foster the development of a training facility for the Oregon National Guard.




SECTION ONE: PLANNING PROCESS The LRA conducted a competitive process during the Spring/Summer of 2009 and selected the Dana Mission Support Team (DMST), a joint effort by Dana Engineering, Inc. and MSE Technology Applications, Inc., to conduct the BRAC-defined planning process under the guidance of the Department of Defense Office of Economic Adjustment (OEA). A task oriented process outlined by the LRA and OEA provided the guiding factors used by the DMST to meet the following objectives:

Development of a broad, current assessment of the land, buildings, and infrastructure Inventorying of economic development and reuse opportunities Assessment of the current environmental condition of UMCD Completion of a market analysis Identification of homeless service opportunities Consideration of viable alternatives for redevelopment Provision of widespread opportunities for public input Development of the Redevelopment Plan and Implementation Strategy (RPIS)

THE PLANNING PROCESS Inputs Outputs

Procedure Amount Date * Tasks/Reports Date * Purpose

LRA Meetings 12 Monthly Public Outreach/

Comment (four reports)

August October November

Public outreach: identification of community’s

future vision of UMCD; Values Mapping

Website Feedback Ongoing Entire Year Land Analysis October Description of the

characteristics of the land

Direct Feedback to LRA Members and

DMST Staff Ongoing

July June

Facilities November Summary of UMCDF, Administrative Area,

warehouses, igloos, etc.

Public Meetings 2 August

September


November General summary of the

environmental condition of the land and buildings

Focus Group Sessions

3 October November

Infrastructure December

Summary of airport runway, grounding network, electrical

distribution, gravel resources, potable water

supply, roads, railway, storm drains, sanitary wastewater, natural gas, and UMCDF

facilities

Public Hearings 2 April June

Social and Economic Assessment

December Summary of the economic

reuse opportunities at UMCD

Market Assessment

December

Determination of the market demand for short‐term leasing and long‐term potential at UMCD

Alternatives Report

April Presentation of five general alternatives for UMCD reuse.

* The dates in this table refer to the range of dates from July 2009 – June 2010.

Redevelopment Plan and

Implementation Study

June Final recommendation by the LRA to the Department of the

Army and HUD

Table 1: The Planning Process




The DMST established an administrative office in Umatilla, Oregon to ensure responsive communications with the LRA and the general public. Under the leadership of the LRA, the DMST helped to coordinate LRA meetings, public meetings, focus group sessions, and public hearings to produce this RPIS. The preceding table briefly summarizes the inputs and outputs of the planning process. Redevelopment Plan—Overview

There are eight overarching factors that govern the opportunities and limitations with respect to reuse at UMCD:

The state and national economy is recovering from a deep recession, and 1,170 individuals will lose their jobs or be relocated due to the pending UMCD closure. A significant portion of those positions are unique in character in that they were created as temporay project based jobs with special skill sets affiliated with the demilitarization of chemical weapons.

UMCD offers significant locational and access-infrastructure advantages. The existing condition of the buildings and infrastructure at UMCD, with the exception of the

UMCDF structures, are generally substandard. Many of the UMCD structures have unique military applications and are not easily converted to alternative uses.

The immediate region, especially as defined by the Ports of Morrow and Umatilla as well as the economic development efforts of CTUIR, offers job creation opportunities that may lessen some of the need for economic reuse at UMCD.

UMCD’s physical expanse and existing site conditions offers large-scale reuse opportunities generally in short supply elsewhere including military training, habitat preservation, and certain types of large scale industrial and institutional applications.

Preservation of shrub-steppe is a major environmental priority for the LRA. The Oregon National Guard has a specific, immediate opportunity to develop a training

facility. A general analysis of development assets yields limited economic development possibilities.

The most promising strategies for reuse include energy development, telecommunication businesses, transportation distribution centers, attracting government funding, environmental restoration, and business recruitment.

All of the factors listed immediately above have impacted both the Redevelopment Plan as well as the Implementation Strategy. Set against the backdrop of these factors are three overarching goals established by the LRA:

Economic Development (job creation) Environmental Preservation (with a special emphasis on

the shrub-steppe habitat) Military Reuse (accommodating the needs and plans of the

Oregon National Guard) During a Values Mapping discussion held by the LRA in the summer of 2009, the above three overarching goals were weighted. The economic development and environmental preservation goals each hold a 40% weight while the military reuse goal holds a 20% weight. The weighting scheme developed by the LRA relates to the relative priority of the three objectives, not to a direct allocation of acreage. The LRA believes that this Redevelopment Plan and Implementation Strategy not only addresses all of the factors identified above, but also accommodates these three overarching goals.

Overarching GoalsEconomic Development

Environmental Preservation Military Reuse




Summary of Plan Components

As noted in the previous table, the planning process has been comprised of nine tasks (in addition to the administrative work). While each of these tasks has been approached independently, the DMST has also worked to ensure that the findings and conclusions of each respective task informs other tasks in the planning process. As such, this RPIS is an integrated plan. Each of the respective planning tasks and corresponding reports has their own executive summary. The information that immediately follows is, in effect, an executive summary of the executive summaries in order to provide a very high-level overview of the findings of the planning process. (Note: the following summary presents the high-level findings for Tasks 2 – 10. Task 1 represents the administrative work related to this planning process.) Initial Planning and Public Outreach (Task 2): Due to the importance of Initial Planning and Public Outreach, four separate reports were completed by the DMST on behalf of the LRA related to communications and outreach. The first report summarizes the results of an LRA meeting that utilized a proprietary DMST approach, Values Mapping®, to envision the “characteristics of an outstanding LRA Board” and the “characteristics of outstanding land use for the UMCD”. The results of this meeting helped to build consensus related to the internal and external functions of the LRA. A second report summarizes the results of the early public outreach workshop that was conducted on October 20, 2009. This report collected information from the general public on “outstanding land use for the UMCD”. The results show that the general public supports economic development, natural resource management, environmental stewardship, contributions to livability, and thoughtful planning as the top priorities.

Public Outreach Extensive outreach to the general public has helped to ensure that the LRA is being responsive to

community needs and expectations.

A third report summarizes the findings from two focus group sessions conducted on October 27, 2009. The report provides a summary of what the general public expects to happen, what concerns they have, what suggestions they have, what economic benefits and environmental protection objectives they have, and offers insight on the proposed use by the Oregon National Guard. Finally, the fourth report summarizes the results of 18 personal interviews that were conducted of LRA members and community opinion leaders in the fall of 2009. The report summarizes responses to seven specific questions: duration of involvement, personal vision, personal expectations, limitations for reuse, planning concerns, suggestions to LRA, and governance options. The findings of all of the public outreach sessions have been incorporated by the LRA into the draft reports and this Redevelopment Plan and Implementation Strategy. The public input was fully considered by the LRA in arriving at its final Plan.




Morrow and Umatilla County Social and Economic Assessment (Task 3): The LRA has an opportunity unique to all of Oregon—planning for the development and preservation of 20,000 “new” acres. Never before in Oregon has this amount of land become instantly available for planning and reuse.

The DMST assisted the LRA by utilizing a proprietary methodology to assess the development assets at UMCD, and to prioritize redevelopment strategies based upon their greatest likelihood of success.

This approach, referred to as Building Communities, analyzes 85 key success factors essential for advancing one or more of 25 alternate land reuse strategies. Both social and economic factors are considered in this analysis.

This Social and Economic Assessment begins by summarizing the relative comparative advantage of UMCD with respect to the 85 key success factors. These factors include social factors such as health care and quality neighborhoods as well as economic factors such as infrastructure and a quality labor force. For each of the factors, a score of between ‘0’ and ‘4’ is identified, and a brief synopsis explaining the key success factor score is presented.

The Social and Economic Assessment also presents regional economic trends, real estate trends, short-term reuse opportunities, and an analysis of maintenance costs associated with the preservation of the UMCD resources. Finally, the Social and Economic Assessment provides an analysis of the potential impacts of job losses due to the closure of UMCD. An analysis completed by WorkSource Oregon (also known as the Oregon Employment Department) identified the economic reliance and impact of UMCD on adjacent communities and counties. In total, approximately 1,170 employees work at UMCD, with 635 residing in Morrow and Umatilla Counties. The total annual estimated payroll of the depot workers for the two counties is $44,654,000. In addition to the direct employment, an additional 252 induced jobs are supported in the region. In total, therefore, an estimated 907 jobs representing total labor income of $52 million annually will be lost at UMCD upon closure if mitigating actions are not taken. Industries that will be most impacted by the decline in household spending resulting from the closure of UMCD include food and drinking places, offices of physicians/dentists/health practitioners, real estate establishments, private hospitals, retail, and wholesale trade.

TOP STRATEGIES PRIORITIZED BY KEY SUCCESS FACTOR RESULTS INCLUDE (SCORED ON A SCALE OF 0‐100):

STRATEGY POINTS

Energy Development 91.3

Telecommunications Businesses 83.8

Transportation Distribution Center 77.5

Attracting Government Funding 75.0

Environmental Restoration 73.8

Business Recruitment 73.0

Table 2: Prioritized Key Strategies

Economic AssessmentThe LRA used an objective approach to identify reuse opportunities that have the

greatest likelihood for success.




UMCD Land and Facilities Assessment (Task 4): The DMST completed two separate land/facilities reports, one summarizing the characteristics of the land and the other report summarizing the conditions of the facilities at UMCD. Land: In total, the UMCD currently occupies 17,054 acres acquired either through purchase or Federal land transfer. In addition to fee simple land acquisition and transfers from the Public Domain, the Army also acquired by direct purchase and condemnation a number of restrictive easements for an additional 2,674 acres for a total of 19,728 acres. There are 1,411 Army owned structures encompassing approximately 3.6 million square feet. The Depot can be divided into 15 specific land use sub-areas. The storage and demolition of ordnance and buffer zone land uses account for more than three-quarters of the Depot’s acres of ownership and restrictive easements. The land area is a semi-arid desert. The land cover outside of the administrative area is largely a drought-adapted steppe with a native shrub-steppe vegetation type. Elevations on the Depot range from 400 to 677 feet above sea level. The topography, with the exception of Coyote Coulee that cuts across the facility along a north 30-degree east axis, is largely flat to gently rolling terrain with slopes ranging from 0% to 7%. In general, topography does not represent a land use constraint on the Depot for any major land use with the exception of Coyote Coulee. The slopes in Coyote Coulee range from 5% to 10% along the western edge to 30% to 45% along the eastern edge of the escarpment. The UMCD has excellent access to road, rail, and river transport. The Base contains approximately 196 miles of internal roadway, of which 160 miles are paved. The southeastern corner of the UMCD is adjacent to the intersection of Interstate 84 and Interstate 82. Immediately adjacent to the Depot, the Union Pacific Railroad operates one of the principle east-west rail line networks - a major factor in base location in 1941. The Depot, itself, has an internal rail network of approximately 50 miles of railroad track. Rail car loading facilities are available to and from Columbia River barges. The landmass occupied by the Depot is part of a far larger region that constituted the historic homeland of the Cayuse, Umatilla, and Walla Walla Tribes. The Umatilla people occupied villages from Umatilla Rapids to Roosevelt Washington along the Columbia River taking advantage of abundant Salmon resources as a primary food source. The existing water rights on the Depot represent a potential “limiting factor” in terms of reuse for intensive agriculture or industrial land uses. If all the current water rights on the Depot were applied exclusively for irrigated agriculture it is estimated that only 450 to 700 acres of the Depot’s 17,054 acres could be brought into production depending upon the crop type. It should be anticipated that no further groundwater water rights of any significance could be issued under the “critical ground water areas” designation currently imposed by the State of Oregon. The Port of Umatilla currently holds a water right to draw water from the Columbia River and retains substantial water rights equal to 80,000 gallons per minute of which less that 25% is currently allocated. The Port had an appraisal on the value of the water right conducted in 2000, where the value of water right was estimated at between $39 million - $51 million. Providing water to the site could be utilized as “matching funds” for development projects. Water capacity may also be available from the City of Irrigon’s municipal system for industrial, institutional, or commercial land uses.

Land and BuildingsThe UMCD offers a large expanse of land as well as a large number of buildings (in various

shapes and conditions) unique to the region.




A review of BLM records has affirmed that formerly withdrawn lands from the public domain that includes 18 of 20 separate parcels have mineral rights retained by the BLM. Generally, the owner of the surface (fee less minerals) can use aggregate for his or her own purpose on site, but cannot commercially sell aggregate for off-site use without acquiring those rights from the BLM. There are two sections of land from the formerly withdrawn lands where mineral rights were not retained. The other “non-withdrawn” tracts acquired by the Army when the Depot was first established were primarily sections of land that were initially railroad grants in 1896 and 1906. These grants were for the fee estate including minerals and would have included mineral rights at the time of acquisition. Later tracts acquired through condemnation would have also included mineral rights. Facilities: This report also assesses the major facilities across UMCD. The assessment looks at the following general areas: Administrative areas, 100, 200 and 400 warehouse areas, K Block facilities, igloos, and the currently operating Umatilla Chemical Disposal Facility (UMCDF) where the remainder of the UMCD chemical weapons is being destroyed. The older UMCD facilities span across the entire Army Depot. Depot structures, with the exception of the UMCDF, were constructed to military base standard structures of the 1940’s era. Only a small number of structures have been occupied or used for the entire Depot life. Many were or still remain, un-used, un-occupied, or have been neglected for several years. Conditions of the older major buildings and facilities at the Depot were evaluated by performing technical walkdown surveys, reviews of existing documentation, and interviews of Depot personnel for various architectural and engineering aspects. Overview inspections were conducted for the headquarters and administration buildings, warehouses and warehouses converted to offices, shop facilities, the fire and emergency response facility, on-base housing, military billets, recreational facilities including the gym, swimming pool, and the hall, and the dining hall and other older or deteriorating structures. The facilities report is primarily a qualitative assessment of structures deemed for possible re-use. Detailed in-depth quantitative analyses of structures are necessary to establish valid re-use alternatives and the levels of required refurbishment and associated costs. For example, specific quantitative data including structural conditions, earthquake resistance, major dimensions/sizes, strengths of structural members, conditions and code compliance of wiring inside walls, and other data was not gathered for the purposes of this report. Some building and facility engineering drawings for some facilities were available; however specifications for the facilities were not found nor provided. Military standard design criteria and loads, material specifications, standard details, etc. from the 1940’s and 1950’s era could not be obtained to support preliminary conclusions. Costs of surviving re-uses will depend upon the type of re-use selected, the decisions on the level of code compliance, and will require detailed quantitative building assessments for the intended reuse.




Infrastructure Assessment (Task 5): This report presents the broad assessment of conditions of infrastructure across UMCD. Unfortunately, drawings, specifications and other documentation describing as-built infrastructure and current conditions is almost non-existent according to Army personnel. Conclusions reached in this report are preliminary and require more in-depth physical examinations and inspections in order to support LRA Redevelopment Planning and decision making. The evaluation team encountered certain limitations during the building and infrastructure inspection. Internal building utilities were mostly covered by walls and the team did not remove or demolish any barriers (e.g. walls) to make observations. The team additionally did not perform any tests for asbestos, lead-based paint, potential contaminates or condition of existing materials (e.g. pavement, structural integrity, wire insulation). The team consists of professionals with many years of design and construction experience that are able to identify potential discrepancies from current acceptable standards for safety and occupancy. The team did make infrastructure observations beyond the original scope of work in an attempt to identify possible resources that may have value for future reuse, specifically, the electrical ground circuit, the airport runway and the gravel resources. While these may or may not have value for future use, the resources should be documented and considered. If additional resources are available to the LRA, it is recommended by the DMST that additional infrastructure analysis be completed in order to develop a specific infrastructure Redevelopment Plan consistent with the reuses and implementation strategy identified in this Plan.

THIS REPORT CONTAINS THE FOLLOWING INFRASTRUCTURE ELEMENTS: • Airport Runway • Electrical Ground Connectivity • Electrical Power Distribution • Gravel Resources • Potable Water • Roadways • Railroad • Storm Drainage • Sanitary Sewer • Umatilla Chemical Demilitarization Facility Infrastructure

Infrastructure Much of the

infrastructure at UMCD will require significant improvement in order that many of the reuse alternatives become

feasible.




Environmental Assessment (Task 6): The environmental assessment did not identify any environmental constraints that will preclude the presently envisioned redevelopment of UMCD. Mutually agreeable demarcation of economic and environmental-related reuse zones, and careful planning of future activities within each of those zones, will clearly support acceptance and subsequent implementation of the Redevelopment Plan.

Environmental ConditionThe LRA has identified the remaining “environmental clean‐up” requirements that must be addressed in order to

redevelop UMCD. The U.S. Army has two major options regarding environmental cleanup of UMCD under the Base Closure and Realignment Act of 1988 (BRAC; P.L. 100-526) and Defense Closure and Realignment Act of 1990 (P.L. 101-510). These options are:

1. Cleanup of all operable units under authority of the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA; 42 U.S.C. 9601-9675, as amended) to those conditions set by the OU-specific Record of Decision (ROD). In such case, the site-specific covenant then documents that all known remedial actions were taken prior to property transfer from the Army to the Local Redevelopment Authority (LRA). The deed should specify that the Army will be responsible for remediating any contamination after date of transfer (start arising only from military service actions). This includes an access agreement with the LRA to perform such cleanup [CERCLA Section 120(h)(4)(D); or,

2. Property transfer occurs prior to completion of ROD requirements, but only after clear and

mutually agreed upon stipulations exist as to the respective (Army vs. LRA) responsibilities regarding, “who, what, when, and where” for completing the necessary site-specific remedial actions. Such agreements will probably include engineering controls (eg. physical barriers) and/or institutional controls (eg. deed restrictions). The purpose of these land use controls is protection of human health and the environment before, during, and sometimes after site-specific cleanup.

Furthermore, the roles and responsibilities of the Army and LRA regarding non-CERCLA cleanup actions must be clearly defined and agreed upon prior to transfer of a particular property. Such regulatory-based actions at UMCD include:

1. Decontamination and decommissioning (D&D) of the Umatilla Chemical Agent Disposal Facility (UMCDF) under authority of the Resource Conservation and Recovery Act (RCRA; 42 U.S.C. §6901 et seq., as amended).

2. Removal of lead-based paint, asbestos containing materials, polychlorinated biphenyls, and

radon gas mitigation in structures, all under authority of the Toxic Substances Control Act (TSCA; 15 U.S.C. §2601 et. seq.).

3. Removal of other substances or materials that could pose serious hazard to onsite workers

(eg. accumulated bio-hazardous wastes in presently unused buildings) under Section 5(a)1, General Duty Clause, of the Occupational Safety and Health Act (OSH; P.L. 91-596, as amended).

The LRA will work closely with the Army to ensure that property-specific cleanup is indeed appropriate to its future reuse, as defined to the extent possible by the UMCD Redevelopment Plan. This plan must accommodate the following Army-led remedial actions that will probably continue for the next 20 years:



DMST_RPIS_D00_052810 10

1. Monitoring of selenium attenuation in alluvial groundwater at the Active Landfill site (OU 5); 2. Monitoring of RDX/TNT removal (via enhanced bio-physical treatment processes) in alluvial

groundwater at the Explosives Washout Lagoon Site (OU 3); 3. Monitoring effectiveness of removing unexploded ordnance (UXO) at the Ammunition

Disposal Area (ADA; OU 4). The LRA will build upon the Army’s significant cleanup programs made over the past 30 years if the following actions occur:

1. Ongoing and planned remediation of the industrial areas (eg. west warehouses and operations buildings) is protective of present and future worker health and safety;

2. Removal or retrofit of existing buildings and infrastructure (eg. utilities, roads) incorporates

timely and appropriate environmental decontamination efforts (eg. removal of avian feces or other residual contamination) prior to initiating site-specific demolition or reconstruction activities;

3. Identification and mitigation of project-specific environmental impacts early in the planning

process via performing site-specific biological and socio-cultural surveys and subsequent application of best management (environmental engineering) practices, respectively.

The creation and maintenance of an active partnership between the Army and LRA will expedite the property transfer process, and promote the long-term economic and environmental goals for reuse of the UMCD. Such relationship should result in:

1. Achieving highest and best use of the Depot’s industrial areas (including the UMCDF); 2. Enhancing military training activities by the Oregon National Guard;

3. Preserving (and possibly restoring) the Depot’s extensive shrub-steppe plant and animal

communities;

4. Protecting Native American sacred sites and significant historical sites present at the Depot. Market Assessment (Task 7): The Market Assessment forecasts market demand for short-term leasing and long-term potential for redevelopment based upon regional economic conditions, trends, and pressures affecting redevelopment. The scope of this study addresses land use types including agricultural, commercial, industrial, and recreational.

Market AssessmentDespite a challenging state and national

economy, UMCD does afford reuse

opportunities consistent with emerging market

conditions.

Obstacles and challenges to redevelopment of the UMCD are identified and mitigating actions to these challenges are suggested. In an economic context the condition of the national, state, and regional economy is challenged. With the national unemployment rate recently near 10%, and a state and local unemployment rate even higher, communities and businesses across America are simply looking to “keep what they have”, rather than engage in significant job-creating investments. On the brighter side, the forecast for the national, state, and regional economy is improving.



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This Market Assessment provides high-level economic statistics showing the trends and current conditions of the economy. The relevance of the economic statistics to the reuse decision making by the LRA is emphasized in this analysis. The report analyzes four types of land reuses: agriculture, commercial, industrial, and recreational. The following are the conclusions from this analysis:

• Industrial reuse opportunities clearly represent the greatest prospect for UMCD. Outstanding access and location, combined with the prospect for huge parcel sizes, affords numerous industrial reuse opportunities.

• Commercial and recreational uses are also possible, but are not likely to dominate the reuse of the UMCD. If specific alternatives for commercial and recreational reuse opportunities are considered desirable then the site selection is most likely to occur in the southeastern quadrant of UMCD, and capitalize on access to Interstate 84 and Interstate 82.

• Value-added agriculture opportunities may be possible, but the viability of this strategy is

impacted by the availability of water and the existing capacity of the Port of Morrow and Port of Umatilla to accommodate such development.

Despite these opportunities, significant obstacles and challenges hamper many of the reuse possibilities that a typical community could advance. The key success factor methodology utilized by DMST concludes that 38 of 85 development factors rank substandard. This eliminates most economic development strategies from viable implementation. Focusing upon development strategies with greater success potential is recommended by DMST. Despite the limited opportunities, the top strategies that remain stand a significant likelihood of success. The State of Oregon identifies three industrial development strategies as the top strategies for 2010 and 2011. Simultaneously, the key success factor analysis for UMCD pinpoints these three strategies as the approaches with the greatest likelihood for success:

• Energy Development • Transportation Distribution Centers/Logistics • Telecommunications Businesses

Finally, this market analysis forecasts that demand for reuse opportunities will increase as the state and national recession dissipates. In fact, the timing for the reuse of UMCD may coincide very well with a rebounding economy. Homeless Accommodation Assessment (Task 8): A Homeless Assistance Plan to the U.S. Department of Housing and Urban Development (HUD) was drafted in conformance with BRAC procedures. The report addresses:

Homeless AccommodationTwo homeless service providers expressed interest in personal property in order to fulfill their

respective missions.

• Information about homelessness in the communities in the vicinity of the installation

• Notices of Interest proposing assistance to homeless persons and/or families

• Legally binding agreements for buildings, property, funding, and/or services

• An assessment of the balance between economic and other development needs



DMST_RPIS_D00_052810 12

• A description of outreach undertaken by the LRA Twelve of the Notices of Interest (NOIs) were submitted from state or local entities seeking Public Benefit Conveyances, two were from homeless service providers, and one was from a private interest. The two NOIs from homeless assistance providers requested personal property. The Agape House request for personal property includes office equipment, office furniture, a forklift, pallet jacks, mechanical tools, and woodworking tools to better serve their clients. CAPECO requested the use of two igloos and any and all household goods appropriate for independent living quarters. The LRA assigned a sub-committee to review the Notices of Interest and approval was made for the two homeless service providers. Redevelopment Alternatives Assessment (Task 9): The LRA was required to consider a series of Alternatives before selecting a Final Redevelopment Plan and Implementation Strategy.

Alternatives Five prospective alternatives

were presented and considered by the LRA before

selecting the preferred alternative.

Five Alternatives were prepared that considered alternate land use scenarios and alternative governance structures in recognition that the successful advancement of an implementation strategy required a broad consensus among the regional and state stakeholders. Each of the five alternatives, therefore, is described not only with respect to their land use implications, but also their governance structure. The table below provides an at-a-glance review of the alternatives that were considered

ALTERNATIVE DESCRIPTION

#1—Preferred A proactive approach by the LRA to designate specific land for industrial, commercial, military, and open spaces purposes

#2—Large‐Scale Development size standards (perhaps defined by an investment amount, jobs, or other parameters) that would be required in order for development activity to occur

#3—County Line Each county would have total autonomy as to the identification of specific land uses

#4—Collaborative County Line

A Joint Powers Agreement would be developed that would recognize the individual desires of the counties but be incorporated in one overarching plan agreed by the entire LRA. Implementation activities would be governed by a local entity (probably the respective Port District)

#5—No Action Concluding that there is not sufficient benefit to prescribe and implement specific land uses, the LRA would disband leaving total authority for land reuse to the US Department of the Army

Table 3: At-a-glance Alternatives In addition to the five Alternatives, three options were provided with respect to the management of the shrub-steppe habitat. The first option would set aside land specific for the preservation of shrub-steppe. The second option would create a management overlay zone allowing shrub-steppe preservation in conjunction with additional objectives. The third option would provide for a combination of the first two options.



DMST_RPIS_D00_052810 13

In addition to the description of the Alternatives, three additional sections of this report are presented:

An analysis of many of the suggested large-scale reuse opportunities analyzed in the context of the five Alternatives

An analysis of the 16 submitted Notices of Interest and their “fit” with the five Alternatives Land use maps for each Alternative

Final Redevelopment Plan – Summary (Task 10): This document, the Redevelopment Plan and Implementation Strategy, is the culmination of the work completed in Tasks 1 – 9 above. That is, this Redevelopment Plan, and the associated Implementation Strategy, is the direct result of the substantial outreach and communication; analysis of land, buildings, infrastructure, and environmental conditions; consideration of market conditions; outreach to homeless organizations; and a review of the feedback received as a result of the presentation of five alternatives. This RPIS document not only summarizes the ten tasks that have been completed, but also presents a recommended land use plan containing a Military Training zone, Wildlife Refuge zone, Industrial zones, a Highway Commercial/Industrial zone, and an Agricultural zone associated with an anticipated land exchange to facilitate industrial zoning and development elsewhere near the UMCD. The specific acreages for each zone are identified in this Plan based upon a GIS analysis, and suggestions as to specific allowable activities within each zone are made.

Final Plan The final Plan summarizes the planning process,

Redevelopment Plan, and Implementation Strategy

for UMCD.

Finally, the RPIS offers an Implementation Strategy that is the result of thorough consideration by LRA members to determine the most appropriate conveyances for the respective portions of UMCD. Very important in the overall recommendation is the case made for a no-cost economic development conveyance for all of the industrial land. Such a conveyance would allow the greatest level of flexibility for redevelopment in challenging economic times while maintaining the organizational capacity and financial capability by local organizations to reuse the land.



SECTION TWO: REDEVELOPMENT PLAN

Figure 1: UMCD Redevelopment Plan The Redevelopment Plan section of this document presents the five zones that have been selected by the LRA for reuse of UMCD. These zones are graphically depicted in the figure above. A GIS-based map also presents the reuse plan on the following page. This Redevelopment Plan section contains three subsections:

Redevelopment Zones Special Considerations Integration with County Zoning Codes

The Redevelopment Zones subsection presents five land use zones: Military Training, Wildlife Refuge, Industrial, Highway Commercial/Industrial, and Agricultural. For each of these zones, a general description of the allowable activities is provided. The Special Consideration subsection presents eight issues that are of paramount importance to the LRA generally related to specific requirements, opportunities, obligations, and policies desired by the LRA as the redevelopment effort moves into the implementation phase. The Integration with County Zoning Codes subsection recognizes that this RPIS will inform the respective county planners on how to update their respective zoning codes to accommodate this Plan.

DMST_RPIS_D00_052810 14



DMST_RPIS_D00_052810 15

Figure 2: UMCD Proposed Land Reuse



DMST_RPIS_D00_052810 16

REDEVELOPMENT ZONES

This Redevelopment Plan is comprised of five major redevelopment zones: Military Training (MT) Wildlife Refuge (WR) Industrial (I) Highway Commercial/Industrial (HC/I) Agriculture (A)

As shown on the map on the previous page, approximately 75% of the overall acreage is split between the Military Training and Wildlife Refuge uses. The table at right presents the total acreage for each of the respective Redevelopment Zones. (Note: The acreage estimates are based on a GIS analysis that will have some variance with more accurate field survey techniques. There is approximately a 100-acre discrepancy between the 17,054 acres of known ownership at UMCD at the GIS based redevelopment zone acreage analysis.) The Industrial Zone is comprised of two sub-zoning designations:

General Industrial Restricted Industrial

The table below provides a broad overview of the general redevelopment activity that will take place in each of the respective Redevelopment Zones and sub-zones.

Description of Redevelopment Zones Zone Sub‐Zone General Description of Redevelopment Activity

Military Training Land that is set‐aside and secured for use by the Oregon National Guard for military training exercises

Wildlife Refuge Land managed by the US Fish and Wildlife Service to preserve the shrub‐steppe habitat for existing and potential wildlife species

General General industrial uses of the land Industrial

Restricted Industrial use that is limited to the utilization of igloos for storage

Highway Commercial/Industrial

Acreage that is set aside for Highway Commercial/Industrial Redevelopment opportunities

Agriculture Exclusive Use Agriculture to be used in a land exchange for nearby Industrial Zoning

Table 5: Description of Zones

Redevelopment Zone Acreages Zone Acres

Military Training 7,421

Wildlife Refuge 5,613

Industrial 1,794

Highway Commercial/Industrial 1,348

Agriculture 655

County Road ROW (estimated) 120

Total 16,951

Table 4: Redevelopment Zone Acreage



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Military Training Zone

Since the early 1980s, the Department of the Army, through the Corps of Engineers, has licensed the Oregon Army National Guard use of the UMCD. The license authorized construction projects and maintenance of UMCD facilities at ORNG expense.

Historical facility uses include a 25M live-fire range, field maintenance shop and vehicle compound, tank crew proficiency course, billeting, dining facility, helipad, and simulations. Previous LRA and ORNG negotiations included a recommended federal-to-federal transfer agreement dated March 21, 2000. The original proposed property transfer included the Ammunition Disposal Area (ADA) (1,760 acres), K-block (1,400-1,500 acres), area south of ADA (20 acres), three ammunition bunkers, buildings 36, 52, 53, and 54 until replaced in K-Block, and building 115 until new maintenance facility is available. The current interest of the ORNG is summarized below:

The Department of the Army has acknowledged that the ORNG has valid training requirements and a long history of use at the UMCD, and encourages the LRA to work with Major General Raymond F. Rees, Adjutant General, Oregon in development of a plan to maintain the training requirements of the ORNG.

Maintain the ORNG’s range and training activities and facilities while working in concert with area representatives to provide economic and resource management opportunities for the local communities. The proposal by ORNG has the endorsement of United States Army Vice Chief of Staff General Peter W. Chiarelli. Chiarelli has recommended that the proposal by ORNG be included in the redevelopment plan.

Capitalize on the opportunity to use vacated demilitarization facilities, ranges, and field training areas to establish a formal Intermediate Training Complex (ITC).

The ORNG presence on the UMCD is beneficial to the surrounding communities, the State of Oregon, and the nation in support of ongoing Overseas Contingency Operations.

The ORNG has an active natural resource management program that is conducive to the conservation of shrub-steppe habitat values on the UMCD.

The current proposal by ORNG includes the development of an ITC with specifications as follows:

Designed to support individual and collective training Training facilities are focused on individual through platoon weapons proficiency and

company maneuvers Full-time manning support and cantonment facilities Small arms range and maneuver space Construction will generally be limited to the requirements to support training companies (100-

150 soldiers each) training simultaneously The required facilities include:

Company Supply and Administration (8,940 sq. ft) Open bay barracks (570 beds including classrooms and laundry

Figure 3: Military Training Zone



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Dining facilities (200 people per company) (13,500 sq. ft Consolidated Dining Facility) ID Processing Center (1,044 sq. ft) Field Maintenance Shop (6,144 sq. ft. building plus vehicle parking area) M1 Abrams Tank Simulation Conduct of Fire Trainer (SIMCOFT) Facility Range Operations building (2,508 sq. ft.) Ammunition Holding Area Small Arms Live-Fire Range Complex Tank Crew Proficiency Course (TCPC) (two miles by 1 mile) Mobile Conduct of Fire Trainer Pad (M-COFT) Helipad Fuel Storage and issue point Supporting Infrastructure including Utilities and Roadways

One of the factors to overcome with the designation of land for use by the ORNG is the inability for the respective taxing authorities (Umatilla County, Morrow County, Port of Umatilla, and Port of Morrow) to benefit from property taxes under the federal Payment in Lieu of Taxes (PILT) program. While land designated for use as a US Fish and Wildlife-managed refuge is eligible for federal PILT payments, the land owned and managed by the ORNG is not. While federal PILT payments are not available, the ORNG offers other economic benefits including personnel and their associated payroll, expenditures in nearby communities, and the ability to design and construct the road network through portions UMCD. The estimated support staff for the ITC would be 17 employees with an annual projected salary of $879,259. The table below summarizes the facilities, soldiers trained, firing range requirements, and land use requirements of the ORNG at UMCD.

Oregon National Guard Staffing, Facilities, and Land Requirements

Facility Annual

Throughput Requirement

Firing Points/Lanes

Land Use

Requirements

Intermediate Training Center 9,780 Soldiers � NA 100 acres

Ammunition Supply Point NA NA 35 acres

Field Maintenance Shop/Unit Training Equipment Site � NA NA

Range Operations and Maintenance Facilities NA NA 25 acres

Combat Pistol Qualification Course 196 Soldiers 15 553 acres

25m Zero Range 644 Soldiers 16 811 acres

Modified Record Fire Range 644 Soldiers 16 1,446 acres

Grenade Launcher Range 51 Soldiers 4 60 acres

Maneuver Training Area * 3,260 Soldiers � NA 5,200 acres

Total 8,230 acres

Change to 7,421 *Annual throughput requirement is based on commanders seeking 100 percent qualification of all personnel on their assigned weapon. *Weapons surface danger zones overlap decreasing the total land use requirement. *All ranges are constructed to TC 25‐8 standards. �Based on all units assigned to training for four three‐day periods per year. �Included in the ITC acreage. �Based on four field training exercises per year.

Table 6: ORNG Staffing, Facilities, & Land Requirements



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The decision by the Oregon National Guard to accept the ADA area has a significant benefit to the federal government. The policy for the environmental clean-up of the land is dictated by the specific plans for the reuse of such land. If, for example, the Reuse Plan called for residential development, it would be incumbent upon the federal government to clean up the ADA area to a degree necessary to safely construct residential housing. One estimate for this clean-up projected this expense at $20 million. Given that the ADA area will be utilized by the Oregon National Guard, no clean up activity will be necessary for this property. The LRA views this as a win/win with the federal government, and requests that this agreement for the reuse of the ADA area be considered in the request for a no-cost economic development conveyance. Administrative Area District: Despite the fact that the Administrative Area at UMCD has benefited from the greatest long-term commitment to use and maintenance of the buildings, the Administrative Area represents one of the least sought after portions of the 20,000 acre-facility. While the administrative complex is comprised of structures that can be immediately occupied, the 1940s era construction is largely outdated, inefficient, and subject to higher maintenance costs than new construction. The most accessible and highly-visible portion of UMCD is the Administrative Area, a 191-acre campus with direct access to Interstate 84. The Administrative Area is comprised of buildings that have formed the headquarters for the military operations since 1941. Most of the structures are World War II-era buildings that have been maintained sufficient for military standards, but would require significant improvements in order to meet building code requirements. Throughout the public process to outline the future of UMCD, very little interest was expressed by either public or private entities for reuse of the complex. While on one hand the complex contained structures and settings that uniquely present the history of UMCD, the specific ownership and management of this area is somewhat uncertain. Recognizing the need to have centralized management and maintenance of the Administrative Area, the Oregon National Guard has stepped forward to utilize the Administrative Area not only for their needs, but also to facilitate the use of the Administrative Area by other state agencies. Future reuse of the Administrative Area may also include other public and private uses. The ORNG has experience managing Memorandums of Understanding/Agreement with public and private interests to utilize land and facilities.

Institutional and Civic Use Zone PurposeThe former depot Administrative Area is well suited for a variety of institutional and civic uses that may be developed on a shared facility basis. The area is intended as the cantonment area for the Oregon National Guard’s training facility designated on 7,230 acres adjacent to the Administrative Area. Other institutional users may include the Oregon Department of Transportation, Oregon State Police, and Red Cross. The area is well suited for further development as a regional emergency services center serving the entire Pacific Northwest. It also has the potential to serve as a training facility for state and local law enforcement. Other institutional and civic use applications may include a visitor center associated with the proposed U.S. Fish and Wildlife Service refuge adjacent to the designation. That facility or an adjacent building may also serve as a historic interpretative center for Interstate travelers regarding the role and former activities of the Depot. Commercial educational services and major event entertainment such as a site for an Eastern Oregon State Fair Grounds have also been suggested. Limited subsidiary commercial travel services may be offered,



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Wildlife Refuge Zone

Leadership at CTUIR has generated a response by the US Fish and Wildlife Service (USFWS) to establish a 5,613 acre wildlife refuge to preserve and support the shrub-steppe habitat as well as other plant and wildlife species at UMCD. The USFWS proposes to manage the shrub-steppe and grassland habitats of the UMCD as a unit of the National Wildlife Refuge System for the benefit of the American people. This would include a jurisdictional transfer of the land from the Department of Defense to the Department of Interior/USFWS. UMCD represents some of the last large contiguous tracts of shrub-steppe habitat on the Columbia Plateau. USFWS indicates that protection of these habitats is critical to assuring the long term viability of shrub-steppe species including burrowing owls and long billed curlews within the Columbia Plateau in Oregon. The current breeding population of owls on UMCD is a local, regional, and nationally significant population and may be the largest in the state. The area has potential for providing opportunities for environmental education and public uses where appropriate and would provide economic stimulus for the surrounding towns. Transfer to the USFWS for management could occur as soon as the current mission is completed. UMCD is located within the Pacific Flyway zone. Habitats within the area serve as resting, feeding, and nesting areas for migratory birds, wildlife, and invertebrates. Species current listing status was obtained from Oregon Department of Fish and Wildlife (2008) and USFWS (2008). Burrowing Owls are declining in the northern half of their breeding range. The breeding range does include UMCD, and most of the western half of the United States as well as parts of Canada and Mexico. The annual population decline is approximately 1.5%, with a cumulative decline of approximately 45% over the past 40 years. The overall breeding range for the Burrowing Owls has been reduced by 56% during this 40-year period. The following migratory bird species have occurred on the area during at least portions of the year. Each species current (9/12/2009) listed status for this region is listed on the following page.

Figure 4: Wildlife Refuge Zone



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Migratory Bird Species Species Name Listing Status

Northern sagebrush lizard Sceloporus graciosus graciosus Federal Species of Concern/State Sensitive

Bald eagle Haliaaetus leucocephalus Federal Monitor/State Threatened

Burrowing owl Athene cunicularia Federal Species of Concern/State Sensitive

Loggerhead shrike Lanius ludovicianus Federal Species of Concern/State Sensitive

Sage sparrow Amphispiza belli Federal Species of Concern/State Sensitive

Ferruginous hawk Buteo regalis Federal Species of Concern/State Sensitive

Swainson’s hawk Buteo swainsoni Federal Species of Concern/State Sensitive

Long‐billed curlew Numenius americanus Federal Species of Concern/State Sensitive

Peregrine falcon Falco peregrius State Sensitive

Lewis’ woodpecker Melanerpes lewis Federal Species of Concern/State Sensitive

Grasshopper sparrow Ammodramus savannarum State Sensitive

Green‐tailed towhee Pipilo chlorurus Federal Species of Concern

Brewer’s sparrow Spizella breweri Federal Species of Concern

Table 7: Migratory Bird Species The USFWS does not anticipate any immediate facilities expansion. Visitor services programs which may include environmental education, interpretation, wildlife observation, and limited facilities could be incorporated into the management of the area. In the long run, new visitor facilities could be constructed for the wildlife area. With respect to fire suppression, the USFWS has a program that addresses this significant concern. Opportunities for a multi-agency fire suppression plan governing the entire UMCD would ensure that the future property owners coordinate and collaborate fire suppression efforts. It is in the interest of development authorities (most notably the Ports of Morrow and Umatilla) that the land designated at UMCD for National Wildlife Refuge status contributes toward the future capability of the port districts to advance their industrial development interests in other locations. (See: “Special Considerations” later in this chapter). That is, the establishment of this habitat conservation area along with other resource management conservation measures included in the Plan should serve to enable the respective port districts to advance their development projects in other areas of lesser habitat significance with the knowledge that one of the two largest and best preserved reserves in the Columbia Basin of shrub-steppe habitat has been protected. Easily lost in the redevelopment of UMCD is the realization that much of the 17,000 acres of land that has been reserved for military and industrial purposes under the Redevelopment Plan is now being designated for habitat and wildlife preservation in some capacity. (See: Special Considerations section.) It should be noted that this Plan advocates for the protection of shrub-steppe not only in the refuge area, but beyond this designated area. The shrub-steppe areas of UMCD would also be protected by a shrub-steppe overlay that may allow for the advancement of shrub-steppe preservation with economic goals simultaneously. The specific areas of UMCD outside of the refuge area to be protected by the shrub-steppe overlay would be determined during the plan implementation phase.



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Industrial Zone

Two distinct areas for industrial zoning are included in this Redevelopment Plan. As shown in the map at right, there are two major areas for industrial reuse:

Land in the southwestern corner The UMCDF area

The largest segment of Industrial-zoned land forms the entirety of the southern border of UMCD within Morrow County, and includes the industrial warehouses and some of the igloos south of the most southern boundary of the ADA area. Figure 5: Industrial Zone

Industrial Land‐Use Zone Purpose The industrial land use is intended to accommodate a broad range of both heavy and light industrial applications in areas that have largely been previously committed to associated activities. The land use designation in the plan is primarily associated with existing brownfield sites with developed transportation links, both rail and Interstate highway, well situated for future industrial development after infrastructure modernization and building remediation. The acreage associated with the previously committed developed areas is significant enough to accommodate larger scale industrial applications that are often difficult to locate. Moreover, the location of these areas is at some distance from urban concentrations reducing urban interface conflicts and transportation related impacts. The designation is intended to accommodate a range of potential future industrial categories including industrial services: manufacturing and production; warehouse, freight movement and distribution; wholesale sales; and utility and energy related applications. Industrial services may include firms engaged in the repair or servicing of industrial, business or consumer machinery, equipment, products or by‐products. Manufacturing and production firms, both light and heavy, may be involved in the manufacturing, processing, fabrication, packaging, or assembly of goods. Warehouse, freight movement, and distribution activities may include but not be limited to major wholesale distribution centers; truck or rail terminals, warehouse complexes, emergency services stockpile and distribution facilities; and terminals for the storage and shipment of agriculture products. Utility and energy related applications could include energy recovery plants, NEO‐electric grid Hub, and alternative energy development.



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Industrial Reuse of UMCDF Area: By far the greatest economic value at UMCD is represented by the Umatilla Chemical Disposal Facility (UMCDF). The facility, which contains entirely modern structures, was constructed at an approximate cost of $700 million. The facility became operational in 2004. Two primary complications exist for reuse and salvage at UMCDF: 1) portions of the structures are contaminated by their chemical demilitarization mission, and 2) the existing permit with the Oregon Department of Environmental Quality would require modification in order to reuse or salvage many of the structures. Despite these two challenges, the upside for reuse and salvage is significant. A broad engineering ballpark estimate of value at 2% - 5% of the original construction cost would yield between $14 million and $35 million for the LRA. It would be required that the LRA plan to reinvest any salvage earnings back into the job-creating mission.

The DMST has concluded that there is significant potential value in preserving and reusing equipment and structures at UMCDF. From a reuse perspective, the buildings with the greatest industrial redevelopment value at UMCD are virtually all located at UMCDF. Opportunities for industrial development benefiting from modern buildings, utilities, and other infrastructure can be significant. Where industrial reuse is not possible or preferred, capturing the salvage value of the equipment and structures can facilitate the broader economic development mission at UMCD. A more in-depth analysis of the reuse and salvage value of the UMCDF facility could be part of the follow-on infrastructure analysis and business plan overseen by an Implementing LRA. The LRA would need to work with Oregon leaders and the Oregon Department of Environmental Quality to continue measures that have already been initiated by the LRA to modify the DEQ permit so that valuable assets are not otherwise destroyed. The demolition of certain contaminated facilities will still be a requirement of the RCRA permit. Preliminary discussions have been held with the Port of Umatilla to be the lead agency to coordinate the UMCDF reuse and salvage strategy under the auspices of an Implementing LRA. Restricted Industrial

This land, bordered by General Industrial zoning to the west, south, and east will be limited to the utilization of the igloos for storage. Use of the roads for ingress and egress to the igloos will be allowed, but all traffic and industrial use must be sensitive to the objective of the preservation of the shrub-steppe habitat. As such, all traffic in the Restricted Industrial zone must remain on the roads. A total of 942 acres are designated as Restricted Industrial.

Figure 6: Restricted Industrial Zone



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Highway Commercial and Industrial Zone

Only the far Southeastern corner of UMCD is suggested for potential future highway commercial development in combination with industrial development, hence the combined Commercial-Industrial designation. The area may be exclusively or primarily used for industrial applications with limited or no highway commercial development dependent upon market demand. Various factors combine to limit the likelihood of retail commercial development at UMCD:

Existing commercial land is already zoned and available within urban growth boundaries of neighboring Oregon communities

Commercial development is generally more successful when it is in greater direct proximity to residential areas

Oregon’s land use system strives to minimize the distance between commercial and residential areas

The existing infrastructure system is generally insufficient for large-scale commercial development

Offsetting these competing factors for commercial development is the significant access and visibility afforded by the southeast corner of UMCD to both Interstate 84 and Interstate 82.

Figure 7: Highway Commercial/Industrial Zone

Highway Commercial/Industrial Zone Purpose The Highway Commercial/Industrial designation is designed to accommodate a range of industrial and commercial land uses. Located at the junction of two Interstates, portions of the designated area are well suited for highway related commercial applications that may include food and vehicle services, lodging, and large‐scale truck stops classified as industrial services. The designation is also intended to accommodate a range of potential future industrial categories including industrial services; manufacturing and production; warehouse, freight movement and distribution; wholesale sales; and utility and energy related applications. Significant portions of the designation have been previously committed to industrial style land uses. Industrial services may include firms engaged in the repair or servicing of industrial, business or consumer machinery, equipment, products or by‐products. Manufacturing and production firms, both light and heavy, may be involved in the manufacturing, processing, fabrication, packaging, or assembly of goods. Warehouse, freight movement, and distribution activities may include but not be limited to major wholesale distribution centers; truck or rail terminals, warehouse complexes, emergency services stockpile and distribution facilities; and terminals for the storage and shipment of agricultural products. Utility and energy related applications could include energy recovery plants, NEO electric grid Hub, and alternative energy development.



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Agriculture

One of the small exceptions to the generally-rectangular overall shape of UMCD is a 655-acre portion of land near the west end of the northern boundary of UMCD. The City of Irrigon has a strong interest to develop additional industrial land within its current (or possibly extended) urban growth boundary. It is the intention of the LRA to exchange this section of land with another section of land located within the City of Irrigon urban growth boundary in order that such land can be utilized for industrial purposes.

Figure 8: Agricultural

Agriculture Land Use Zone Purpose The agriculture land use zone is intended for exclusive use agricultural applications as recognized under the Oregon Land Use System and as contained in the Morrow County Zoning Code. Such uses may include irrigated agriculture or grazing lands.



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SPECIAL CONSIDERATIONS In addition to the primary redevelopment zones presented above, this Redevelopment Plan also presents a series of special considerations that are of importance to the LRA. These considerations generally relate to specific requirements, opportunities, obligations, and policies desired by the LRA as the redevelopment effort moves into the implementation phase. Shrub-Step Policy The UMCD is situated within the Artemisia-Agropyron (A-A) steppe zone within the lower Umatilla Basin. The UMCD complex represents one of the two largest remaining bitterbrush shrub-steppe habitats in the Columbia Basin. In the early stages of the planning process the LRA recognized and prioritized the accommodation of three principle objectives. One of those objectives was the retention and management of the shrub-steppe habitat values embodied on the UMCD. The other two critical objectives were the mitigation of economic impacts associated with the closure of the Base and accommodation of a vitally important training facility for the Oregon National Guard. Habitat Land-Banking Intent - To maximize the accommodation of all three objectives, the RPIS represents a strategy that blends interrelated considerations both on and off the UMCD. In the case of shrub-steppe habitat conservation the RPIS aggressively employs four land use designations and/or conservation techniques as described below to optimally conserve shrub-steppe values while simultaneously addressing the other principle objectives of the plan. In so doing, it was the specific intent of the LRA members to provide a large, managed reserve of some of the highest quality shrub-steppe habitat in the region as part of the RPIS so that potential commercial and industrial development elsewhere in the Umatilla and Morrow county region could potentially proceed in future years with the knowledge that important resource values had been adequately protected on the UMCD. By intentionally restricting or eliminating the economic development options on significant portions of the UMCD for important habitat conservation objectives, community leaders as represented on the LRA have specifically developed a tradeoff strategy designed to retain and pursue economic development options judged to exist in more suitable locations elsewhere, both on the UMCD and the adjacent region. U.S. Fish and Wildlife Service Habitat Refuge - The RPIS calls for the establishment of a US Fish and Wildlife Service Refuge on the UMCD for dedicated management of bitterbrush shrub-steppe resource values. The proposed Refuge would be 5,613 acres in size or approximately 33% of the UMCD. Restricted Industrial District - Beyond the federal Refuge, three other mechanisms are recommended in the Plan to expand the footprint of the shrub-steppe habitat protection objective. As previously noted, the first of those mechanisms is the establishment of a “Restricted Industrial District” in the southwest quadrant of the Depot located in Morrow County. The District would be 942 acres in size. Under the RPIS this District would receive special protections under the Morrow County Zoning Ordinance allowing for the industrial or commercial use of the existing igloos storage bunkers and road network located in the designation, but it would strictly prohibit any further development of industrial land uses on existing undisturbed land or any activities beyond the basic igloo footprint that



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could constitute a risk or disturbance to habitat values. It is also the intent that these same types of protections would be included as restrictive conservation covenants or lease restrictions by an Implementation LRA if so selected by the Department of Defense as the conveyance vehicle. Resource Management Plan by the Oregon National Guard - The Oregon National Guard has a distinguished track record and established planning and natural resource management protocol for the protection of sensitive habitat values. The ORNG also has the financial resources for such activities. Under the RPIS, that area designated as the Oregon National Guard Training District has as its primary purpose the provision of a critical training facility. A secondary objective of the District, however, is to provide a habitat buffer and habitat expansion, where appropriate, to compliment the adjacent U.S. Fish and Wildlife Service Wildlife Refuge. The Oregon National Guard Training District is 7,421 acres in size, supplementing the resource values of the 5,613 acre Refuge District. Many of the areas designated within the Oregon National Guard Training District and the Guard’s training activities themselves, are conducive to the conservation of shrub-steppe habitat values. The Oregon National Guard has committed to the development of a natural resources plan and management protocol that, to the extent possible, blends resource protection with the primary mission of the District (military training). These measures are likely to be similar or largely identical in nature to those that the Army has maintained over time that has resulted in the high quality shrub-steppe resource that is present today. Conservation Covenants in Select Industrial Areas - The final of the four conservation measures undertaken in the RPIS to support shrub-steppe habitat values is the potential establishment of conservation covenants or lease term restrictions in select areas of the UMCD designated for Industrial or Highway Commercial/Industrial zone designation. The overriding land-use objective in these limited District designations under the RPIS is economic development to compensate for the impacts associated with Base closure. Most of the areas in question have already been committed to some form of development and significant disturbance under previous Army activities. However, in select locations under certain redevelopment scenarios it may be possible to accommodate certain natural resource management objectives while simultaneously meeting the primary objective of industrial or commercial development. Where appropriate, these measures would be implemented by the Implementation LRA through the use of conservation covenants or lease term restrictions. Precautions for fire management or the protection of highly sensitive resource values, heritage or natural, would likely be a primary consideration. Environmental Clean-Up

One of the most significant concerns of the LRA is the poor environmental condition of portions of the land and buildings at UMCD. Specifically, due to the nature of the original construction (World War II-era), many of the building have residual asbestos and lead-based paint. In order that the industrial and warehousing structures be reused, the LRA strongly requests that the Army remediate all of the asbestos and lead-based paint on the existing structures as well as portions of existing structures that have deteriorated and separated from existing buildings (siding on the industrial warehouses in the southwest corner of UMCD, for example). In addition to asbestos and lead-based paint, the LRA requests continued operations of the pump-and-treat system as well as remediation of solid waste landfills on the sight.



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The Planning Process section of this RPIS summarizes the environmental condition of the property, and prescribes specific recommendations and activities that the LRA requests of the federal government. As such, these activities and recommendations are incorporated into this RPIS. Water and Sewer Infrastructure

The Infrastructure Report in this Redevelopment Plan provides significant detail on the condition—and deficiencies—of the existing water and sewer systems. With the exception of the systems serving UMCDF, the sewer and water infrastructure is generally deficient in terms of meeting the general reuse opportunities and recommendations outlined in this Redevelopment Plan. In general, the water and sewer systems have been maintained to the degree necessary in order to meet the evolving military/defense mission of UMCD. Given the period of time that has elapsed since the primary military function of UMCD, the water and sewer systems not only would fail to meet the military uses of the past, but also the Industrial and the Highway Commercial/Industrial uses of the future. It is strongly recommended that a water and sewer master plan be developed for UMCD that fosters the projected uses at UMCD. In other words, future projected uses consistent with the land use plan outlined in this Redevelopment Plan should define the specific sewer and water infrastructure capacity and design of the improved system. Without significant planning—and ultimately, construction—of an improved water and sewer system, the possibility of virtually all of the prospective reuse alternatives are negated at UMCD. Notably, two significant variables affect the availability of water at UMCD—one negative and one positive. The Oregon Department of Water Resources has designated the area as a critical groundwater area. This designation establishes significant restrictions on the area in terms accessing groundwater resources. On the positive side, the Port of Umatilla has substantial water rights that could be applied to future reuses at UMCD if certain economic development goals and objectives are met. In addition, the City of Irrigon has expressed interest in extending their municipal sewer and water infrastructure to UMCD. In general, the existing water rights on UMCD would be allocated on a prorated share basis within Morrow County and Umatilla County. A detailed utilities plan for both water and wastewater will need to be prepared in the future to ascertain the most cost effective and rational development approach associated the provision of basic utility services. Rail Salvage

The historic military use at UMCD required an extensive network of rail lines that allowed for transport of munitions to the igloo storage areas as well as to some of the industrial buildings. In general, the gauge of the rail is not sufficient for present-day rail transportation. Nonetheless, the rail has significant potential value as salvage. In total, UMCD has approximately 52 miles of rail. A preliminary estimate of the salvage value of the rail is $3 million - $5 million. One of the objectives of the future business plan would be to further clarify the salvage strategy and reuse value.



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Road Policy

This Redevelopment Plan recommends the development of a road network that serves the following objectives:

Allows access, restricted where appropriate, to the redevelopment zones (Military Training, Wildlife Refuge, Industrial, Highway Commercial/Industrial)

Allows traffic to pass to and through UMCD for improved access associated with the City of Irrigon area

Recognizes the security considerations of the Oregon National Guard Designates certain portions of the road system as County Right-of-Way (necessary, for

example, through the wildlife refuge) Allows for the development and maintenance of the road system in a sustainable fashion,

largely developed by the Oregon National Guard

Law Enforcement Policy

Historically, the Department of the Army has provided for the security and law enforcement requirements at UMCD. Because the reuse of UMCD will entail ownership and management by multiple agencies and organizations, an interagency agreement for the provision of law enforcement should be established. A collaboration of federal, state, and local authorities should be considered in order that the people and property throughout the complex be protected. Security

Security is a consideration for all of the reuse zones within UMCD. Security is a paramount concern for the Oregon National Guard. As such, land owned and managed by the Oregon National Guard will have a secured perimeter fence. Security for other reuses will be established as reuse activities are defined. Fire Protection Policy

The suppression of wildfire on the 17,000-acre complex has historically been a significant concern and responsibility of the Army. As recently as 2009, for example, a 3,000-acre fire consumed portions of UMCD at a fire suppression cost of approximately $500,000. As the Oregon National Guard and the US Fish and Wildlife Service will be responsible for approximately 75% of the overall land mass, an interagency agreement between the two agencies and other relevant organizations such as rural fire districts should be established in order to protect the people, natural environment, and built environment at UMCD.



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INTEGRATION WITH COUNTY ZONING CODES

Both Morrow and Umatilla Counties will need to draft zoning code language specific to the various reuse functions prescribed in this plan:

Military Training Facility Wildlife Refuge Institutional/Public (for the Administrative Area) General Industrial Restricted Industrial Highway Commercial/Industrial

Both counties also have detailed, approved planning provisions in place for areas surrounding the Depot lands. The most appropriate and efficient approach to accommodate the transfer of the Depot site with respect to Oregon’s land planning requirements is through the use of a “post acknowledgment plan and ordinance amendment”. The land use designations suggested in the LRA Master Plan can be incorporated into the respective Morrow and Umatilla county comprehensive plans, following the “post acknowledgement amendment process” and approved by LCDC. If the planned uses are similar to the surrounding uses or similar to the current uses at the site this process would likely be sufficient. If significant changes in zoning are required under the LRA’s Master Plan then a “Goal 13 Exception Request” may be required in the amendment process. The consensus of state and local planning officials it is that there will be no requirement to consider potential off-sets from existing inventories of industrial or commercial lands already designated in the Morrow County, Umatilla County, Hermiston, Umatilla, or Irrigon urban growth boundaries.



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SECTION THREE: IMPLEMENTATION STRATEGY The LRA has indicated its intent to move into an implementation phase after the approval of this RPIS. As shown in the schematic below, the LRA is recommending three types of conveyance mechanisms:

• Federal legislation for land transfer to state ownership • Federal agency-to-agency transfer • Economic development conveyance

Figure 9: Implementation Strategy Federal Legislation for Land Transfer to State Ownership - For the land that would be transferred to the ORNG, the LRA recommends federal legislation for land transfer to state ownership. In total, 7,421 acres would be transferred through this process. In the event that congressional legislation cannot be obtained, the back-up approach recommended by the LRA is for a Public Benefit Conveyance (PBC) through the Federal Emergency Management Agency. Federal Agency-to-Agency Transfer - For the property to be owned and managed by the US Fish and Wildlife Service, the LRA recommends an agency-to-agency transfer from the Department of the Army to the US Fish and Wildlife Service. Economic Development Conveyance - For the lands that would be zoned either Industrial or Highway Commercial/Industrial, the LRA recommends a no-cost economic development conveyance.



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Case for a No-Cost Economic Development Conveyance The LRA understands that a strong case should be made for a no-cost economic development conveyance. Toward this end, the LRA offers the reasons why a no-cost economic development conveyance should be made. Reason #1: Immediate Job Loss - The curtailment of chemical demilitarization activities at UMCD will cause a short-term loss of over 1,170 jobs. Reason #2: Residual Environmental Problems - Because most of the structures at UMCD are of World War II-era construction, the buildings are covered with lead-based paint and asbestos materials. Reuse of many of the structures will require a significant expense by the Implementing LRA in order to make future use of such structures. Reason #3: Poor Physical Condition of Building and Infrastructure - The buildings and infrastructure systems throughout UMCD have been in a state of deterioration for decades. While the Army has maintained certain structures and portions of the infrastructure in a satisfactory condition for a small segment of the overall property, huge expenses will be faced by the Implementing LRA for any buildings that are deemed reusable. In addition, upgrades to the sewer and water systems will be significant in order to utilize the property for future industrial and commercial use. Reason #4: Positive Solution on the ADA Area - Because the LRA and the Oregon National Guard have agreed that the ORNG should reuse the ADA area located in the Northwestern quadrant of UMCD, the Army will not be required to remediate the land to dispose of unexploded ordnance to a higher land-use classification such as residential. It is estimated that the military reuse of the land, which will not trigger environmental clean-up, may create savings of as much as $20 million. Reason #5: Poor Market Conditions - Not only is the national economy only beginning to recover from a deep recession, but the status of the State of Oregon economy is significantly worse than the national average. Compounding this matter is the fact that the unemployment rates for Morrow and Umatilla County have been at or above the state average. This results in an economic climate whereby industrial reuse in the short term is highly unlikely. Reason #6: Strained Local Budgets - Not only has the economy had a challenging effect on the capacity to utilize the land, but it has also drained the budgets of the entities the land would be transferred to. This, coupled with diminishing economic development resources at the state level, limits the ability for public investment for redevelopment. Reason #7: Competing Local Industrial Assets - While the LRA recognizes many redevelopment opportunities for UMCD, the region is also blessed with other industrial development assets and industrial parks that must also be developed, serviced, and maintained. In certain respects, industrial land reuse opportunities at UMCD represent a phase of development beyond the immediate opportunities at existing industrial parks. Balancing this, however, are certain unique development opportunities only afforded by the expanse of land and available infrastructure at UMCD. In short, the redevelopment of industrial land through economic development conveyances is a part of a broader portfolio of economic development opportunities being managed by local development authorities.



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Reason #8: Meeting the Army’s Needs - The LRA has understood that it is a priority of the Army to have the needs of the Oregon National Guard met. The LRA approved this Redevelopment Plan with the understanding that the needs of the ORNG are entirely met. Respectfully, the LRA requests a no-cost economic development conveyance with this agreement in mind. Recommending an Implementing LRA During its May 20, 2010 regular meeting, the LRA voted unanimously to establish an Implementing LRA for the lands that are recommended to be transferred through an economic development conveyance. The LRA considered a variety of conveyance mechanisms, and opted for an Implementing LRA as the mechanism that provides the greatest flexibility for job creation. As noted in this RPIS, the LRA strongly recommends a no-cost economic development conveyance in order to maintain the greatest capacity and latitude for job creation. Because of the significant task laid before the (future) Implementing LRA, it will be necessary for the ILRA to have a full understanding of the opportunities and risks associated with the lands conveyed by an economic development conveyance. While the opportunity for industrial redevelopment and salvage is significant, the responsibilities to the ILRA to maintain facilities, address structural and environmental deficiencies, and upgrade utilities are enormous. Specifically, some of the challenges to the ILRA are as follows:

• Specific needed improvements to infrastructure are unknown • The total cost for infrastructure improvements is unknown • The salvage market for rail needs to be investigated • Specific opportunities for the reuse and salvage of equipment at UMCDF needs to be further

investigated • A plan for the administration—and administrative costs—of the LRA needs to be determined • Policies with respect to development vis-à-vis development at competing industrial sites

(both ports, local communities, CTUIR) need to be developed • A marketing plan for industrial development needs to be defined • A plan to transition from military to civilian use needs to be defined

A business plan including a ten-year cash flow pro forma would help to set the priorities for ILRA, and to address any financial risks that must be overcome. In addition, an infrastructure analysis must be completed that identifies the infrastructure improvements necessary consistent with the implementation of the Redevelopment Plan. Per the requirements of the OEA, an Implementing LRA must implement the Redevelopment Plan, apply for and receive property via an economic development conveyance, meet OEA-defined criteria, and be designated locally while being recognized by the OEA. Implementing LRAs must have the following capacity:

• Buy, lease, and sell land • Borrow and lend money, and grant mortgages for debt obligations • Enter into contracts • Issue bonds backed by revenues of the community using the bond proceeds

Implementing LRAs must also demonstrate the authority to enter into legal commitments including



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holding title and incurring debt and managing real property. Additionally, Implementing LRAs must have accountability to the respective governmental jurisdictions that they represent. Finally, Implementing LRAs must establish that a public entity, such as a City or County, will assume the obligation if the LRA is dissolved. During its May 20, 2010 meeting, the LRA considered various forms and structural models for the establishment of an Implementing LRA. During the meeting, it was noted that the State of Oregon does not currently have statutes that provide for the establishment of such a state-recognized organization. The LRA agreed to continue to examine various structural models, and will work with OEA to create such a structure. The primary considerations in the establishment of an Implementing LRA include management, legal, financial, political, consideration of Redevelopment Plan land uses, and the oversight of a business plan and infrastructure analysis.

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